Getting The Word Out.

• Author: Rosenthal, Alan

Legislatures are disdained but largely unknown entities to the average citizen. Educating the public is vital.

Civic education in the United States has an uphill battle ahead.

One problem is the lack of civic knowledge among Americans. The 1998 Civics Report Card, based on the National Assessment of Educational Progress, found that one-third of students in grades four, eight and 12 did not have even a "basic" knowledge of civics, and only one-quarter were considered "proficient." Adults show little more knowledge than youngsters, as surveys tediously document.

Another problem is the lack of civic involvement, which is in just as precarious a state as knowledge. Voting has been on the decline for four decades now, and young people are especially uninterested. Fewer than one in five 18- to 24-year-olds bother to vote. The attitudes of American youth on politics, citizenship, government and voting are explored in the New Millennium Project of the National Association of Secretaries of State. When it comes to participating in the democratic process or feeling connected to citizenship, politics and government, the disinterest of young people is frightening.

Older citizens are more likely than younger ones to engage in political life, but they too are pretty apathetic. A poll of New Jersey citizens in early October 1999, for example, asked if they knew which offices were up for a vote in the next month's election. Only 9 percent correctly identified the state Assembly as being on the ballot, while 78 percent said they did not know, and 13 percent incorrectly named other offices. Only one out of five of the eligible voters even voted in that election.

People don't like politics either. They are negative, distrustful and cynical about political institutions, political processes and political people. Young and old alike believe that most politicians are dishonest; government is run by a few big interests looking out for themselves, and not for the benefit of all; and that the system just doesn't work. National and state polls and focus groups repeatedly show that citizens not only lack knowledge and are disengaged, but that they hold legislators and legislatures in exceedingly low esteem.

State legislators recognize that, as part of their representational role, they have some responsibility for civic education. They have been working at explaining representative democracy and the legislative process to the public for quite a while now. Over a half century ago, for example, Massachusetts passed a law requiring the legislature each year to conduct a Student Government Day for high school students. Much more is being done today.

America's legislatures increasingly are getting the word out that:

* Citizens ought to participate because they can make a difference.

* Legislators do listen and care what their constituents think.

* Being a legislator is not an easy job.

* A bill must run the gauntlet in order to become law.

* Citizens neither agree on what the main problems facing the state are nor on what the solutions are to most problems.

* The legislature must come to agreement on many issues, and it does, mainly through deliberation, bargaining and compromise.

* The legislative system isn't perfect, but it does work.

Some legislatures have taken civic education into their own hands with programs that not only bring people to the Capitol, but teach them the value of representative democracy.

VISITING THE CAPITOL

The tour of the New Jersey State House starts in the rotunda, makes its way to the Senate gallery and majority conference room and then crosses over to the Assembly gallery and the governor's reception room. "Our mission," says Philip A. Hayden, town program coordinator for the Office of Legislative Services, "is to teach the legislative process, and that's what we do." Yet, each tour is audience driven. Adult groups tend to be more interested in architecture and art than in lawmaking, but the job of the guide is to try to relate the legislative process to the interests of the visitors on the tour--that is, to sneak in teaching about the process.

The 36,000 people--three quarters of whom were children--who visited New Jersey's State House in 1999 were shown around by 82 volunteer and staff guides. New Jersey's guided tours are unusual in two respects. First, they are the responsibility of the Legislature, whereas in most states tours are run by the executive branch, the governor's office, the historical society or a private contractor. Second, New Jersey's tours place as much emphasis as possible on the lawmaking process and the citizen's role in representative government. In most states, the capitol building and its history, architecture and art are the focus of the tour.

New Jersey will soon open a new welcome center for visitors. It...